Decent Homes Standard:

Transcription

1 Applied Energy Products Ltd Morley Way Peterborough PE2 9JJ t f Decent Homes Standard: Modernity & Thermal Comfort learning knowledge personal development

2 The Decent Homes Standard In July 2000, following its Spending Review , the Government announced a significant increase in resources for social housing. A tenyear target was set with the aim of bringing all social housing up to a decent standard by Owing to the lack of understanding with regards to the Decent Homes Standard, Applied Energy Products Ltd is producing guidance for housing professionals. This publication is intended to summarise key issues from the Decent Homes Standard in an easy to read way. In its Green Paper Quality and Choice: A Decent Home for All (July 2000), the Government set two targets: 1 To reduce by a 1/3 the number of social housing properties which fail the Standard by To have all social rented homes meeting the Standard by 2010 The 2002 Spending Review renewed the commitment above and expanded the target to cover vulnerable households in the private sector. Similarly, the 2004 Spending Review introduced families with children in recognition of the Government s commitment to tackling child poverty. The amended target is now: by 2010 to bring all social housing into decent condition, with most of the improvement taking place in deprived areas, and for vulnerable households in the private sector, including families with children, increase the proportion of private housing in decent condition. According to the Government, A decent Home is one which is wind and weather tight, warm and has modern facilities. The Government made it their priority to reverse the decades of neglect and this standard was to be the cornerstone for improving people s quality of life the home. To set a national target, a common definition of decent is needed so all social landlords can work towards the same goal. A decent home therefore comprises of FOUR key components: It Meets the Current Statutory Minimum Standard For Housing It is in a Reasonable State of Repair It has Reasonably Modern Facilities and Services It Provides a Reasonable Degree of Thermal Comfort In order to develop a greater understanding, this briefing guide will specifically address the last of the two components: Reasonably Modern Facilities and Services and Reasonable Degree of Thermal Comfort. It has Reasonably Modern Facilities and Services Although the Decent Homes Standard undertakes to ensure a minimum standard of housing, it also attempts to further improve the living conditions for tenants by promoting the installation of modern facilities and services. This is an attempt to add value and enhance the quality of life for social housing tenants. A dwelling will fail this criterion if it lacks three or more of the following facilities: a kitchen which is 20 years old or less; a kitchen with adequate space and layout; a bathroom which is 30 years old or less; an appropriately located bathroom and WC; adequate noise insulation; and adequate size and layout of common entrance areas for blocks of flats. The ages used to define the 'modern' kitchen and bathroom are less than those for the disrepair criterion (see Insight 2) and this reflects the modernity of kitchens and bathrooms, as well as their functionality and condition. Table 1: Failing on Modern Facilities and Services FAILING THE CRITERION EXAMPLE a kitchen with inadequate space too small to contain all the required items and layout (sink, cupboards cooker space, worktops etc) appropriate to the size of the dwelling an inappropriately located bathroom main bathroom or WC located in a bedroom and WC or accessed through a bedroom (unless the bedroom is not used or the dwelling is for a single person). Also fails if the main WC is external or located on a different floor to the nearest wash hand basin, or if a WC without a wash hand basin opens on to a kitchen in an inappropriate area (i.e. next to the food preparation area) inadequate insulation from external where there are problems with, for example, airborne noise traffic (rail, road and aeroplanes) or factory noise, landlords should ensure reasonable insulation from these problems through installation of appropriate acoustic glazing in line with the current Building Regulations inadequate size and layout of common entrance areas for blocks of flats insufficient room to manoeuvre easily. Includes where there are narrow access ways with awkward corners and turnings, steep staircases, inadequate landings, absence of handrails, low headroom etc 2 3

3 The English House Condition Survey measured the national standard and examples of how properties failed are given in table 1. the ODPM: Housing, Planning, Local Government and the Regions Committee s Report on Decent Homes, July 2004). non-decent homes, this equates to 3.6% (1996) and 2.4% (2001). Of the 502k in 2001, 192k was social housing. ODPM: Housing, Planning, Local Government and the Regions Committee s Report on Decent Homes, July 2004). This principle was agreed with local authority representatives during the consultation on the formulation of the Major Repair Allowance allocations. Again, this enables dwellings to be improved beyond the standard required in the disrepair criterion. If tenants are happy with their facilities, the published guidance is clear that landlords are not expected to make a home decent against a tenant s wishes (A Decent Home - The definition and guidance for implementation, ODPM, Feb 2004). Where a tenant refuses to grant permission for work to be carried out on their home, the work may be postponed until they have vacated the property. The only exception to this is where the structural integrity of the property needs to be maintained, or where there is a need to prevent other components in the dwelling from deteriorating (Government Response to In some instances there may be mitigating factors which may inhibit or render the improvements required to meet the decent homes standards difficult (i.e. physical or planning restrictions). Where this is the case, the property should be assessed, in consultation with the relevant body or agency, to determine the most satisfactory course of action. The outcome may determine that some improvements may be possible even if all are not. It should be noted that a dwelling would not fail this criterion, where it is impossible to make the required improvements to components for planning reasons. Based upon the figures from the English stock condition surveys, the number of homes failing on this criterion has been reduced from 731k to 502k between 1996 and In the context of all The modernisation criterion has been criticised with the ODPM calling for a greater degree of flexibility and tenant choice in determining which facilities should be replaced (ODPM: Housing, Planning, Local Government and the Regions Committee Decent Homes Report, May 2004). This inflexibility has led to confusion over whether old facilities in good working order and likewise poor facilities, which fall below the old age threshold, should be replaced. However, the Government contests that in order to implement the standard on a national basis; it must have clear criteria and boundaries. This ensures that those living below the standard get improved homes and allows for effective monitoring to measure progress and assess whether a target has been achieved (Government Response to the The standard is not designed to be a utopian vision that covers everything a tenant wants. However, landlords should use their own judgement and consider tenant priorities when implementing the standard. It Provides a Reasonable Degree of Thermal Comfort Arguably the most important part of the Decent Homes Standard is concerned with ensuring dwellings provide a minimum level of warmth. By creating an environment of thermal comfort, tenants are more likely to enjoy a better quality of life. On top of generating heat, this criterion considers the issues of energy efficiency in order to maximise energy usage and minimise running costs. As such, the criterion requires a dwelling to have both: efficient heating; and effective insulation 4 5

4 To achieve a reasonable degree of thermal comfort, it has been identified that heating, insulation and ventilation are not mutually exclusive. Efficient heating is defined as any gas or oil programmable central heating or electric storage heaters or programmable LPG/solid fuel central heating or similarly efficient heating systems which are developed in the future (A Decent Home - The definition and guidance for implementation, ODPM, Feb 2004). Heating sources which provide less energy efficient options will fail the decent home standard. Programmable heating refers to systems where the timing and temperature of the heating can be controlled by the tenants. The level of efficiency varies depending on the type of heating system installed and as a result, guidelines have been issued to ensure that an appropriate level of insulation is provided in each property. This can be summarised as follows: For dwellings with gas/oil programmable heating, cavity wall insulation or at least 50mm loft insulation is an effective package of insulation; and For dwellings heated by electric storage heaters/lpg/ programmable solid fuel central heating a higher specification of insulation is required: at least 200mm of loft insulation and cavity wall insulation (A Decent Home - The definition and guidance for implementation, ODPM, Feb 2004). Where new heating systems are being installed or existing system replaced, landlords should take the opportunity, where possible, to increase the energy efficiency of the dwelling. This would be achieved through the installation of energy efficient intelligent electric heating systems and an appropriate level of insulation. If new heating or insulation is installed, it is important that steps are taken to ensure the dwelling is adequately ventilated (A Decent Home - The definition and guidance for implementation, ODPM, Feb 2004). Three energy efficiency programmes have been initiated to provide additional resources to carry out the aforementioned improvements. The programmes are: The Energy Efficiency Commitment (EEC): This requires electricity and gas suppliers to meet targets for the promotion of improvements in domestic energy efficiency. They do this by encouraging and assisting domestic consumers (in both private and public sectors) to take up energy efficiency measures. Warm Front: This scheme tackles fuel poverty among vulnerable households in the private rented and owner occupied sectors. The scheme provides grants for packages of insulation and heating improvements, including central heating systems, for eligible households. Transco's Affordable Warmth Programme: This programme has introduced Affordable Warmth leases targeted at Registered Social Landlords and Local Authorities. These leases make the installation of energy efficiency measures more financially attractive for both landlords and tenants. Although the thermal comfort criterion has been criticised for promoting a standard that is too low (ODPM: Housing, Planning, Local Government and the Regions Committee Decent Homes Report, May 2004), it is not the intention of the Government to change the goalposts at this stage (Government Response to the ODPM: Housing, Planning, Local Government and the Regions Committee s Report on Decent Homes, July 2004). The published guidance states that the level of work carried out to those homes below standard will vary in line with the policies of social landlords. It also states that when tackling homes that fail through less than 50mm loft insulation a greater depth should be installed, and when considering refurbishment work landlords should consult current Building Regulations and other relevant technical publications (A Decent Home - The definition and guidance for implementation, ODPM, Feb 2004). Based upon the figures from the English stock condition surveys, the number of homes failing on this criterion has been reduced from 7.8m to 5.5m between 1996 and In the context of all non-decent homes, this equates to 38.5% (1996) and 26.3% (2001). Of the 5.5m in 2001, 1.2m was social housing. Decent Homes Plus The ODPM have expressed their desire to see a more ambitious Decent Homes Standard to supersede the current 2010 standard. The Committee recommends that a more aspirational Decent Homes Plus target be set for a later date and the scope of which should be broader and demand a higher standard. The initial target date suggested by the ODPM is in the range. The new Decent Homes Plus should be better aligned to the wishes and expectations of the occupants and should include: a much more ambitious thermal comfort criterion which is in line with Building Regulations in force at the time the new Standard is set (ODPM: Housing, Planning, Local Government and the Regions Committee Decent Homes Report, May 2004). Given the confusion and uncertainty of the 2010 Decent Homes Standard, the introduction of a new standard at this stage would further complicate matters. On top of this, it is perhaps, too early to consider targets for Standards and people s aspirations change over time and any target set for that period now is likely to be outdated before With this in mind, the Government are focussing their attention on meeting the existing challenges as posed by the 2010 target (Government Response to the ODPM: Housing, Planning, Local Government and the Regions Committee s Report on 6 7

5 Decent Homes, July 2004). and the CI are adjusted for the floor area The calculations are not affected by the The incorporation of the modern The ODPM have presented a number of so that they are essentially independent geographical location or factors that facilities criterion is an attempt to add recommendations relating to the of dwelling size for a given built form. depend on the individual characteristics value to the standard of living for social concept of Decent Homes Plus. With of the household. These include: housing tenants. On top of achieving a regards to thermal comfort, the proposal would include much more The SAP rating is expressed on a scale of (the higher the number the household size and composition minimum standard for housing, this component is aimed at reducing the ambitious requirements and would use a widely recognised industry measure such as Standard Assessment lower the carbon emitted) and although all new buildings must have a SAP rating, as yet there is no minimum ownership and efficiency of particular domestic electrical appliances polarity that epitomises the UK housing market. There has been some concern as to the inflexibility of the criterion but Procedure (SAP) ratings. The chosen measure would be used across all the targets and policies in the energy efficiency area (ODPM: Housing, Planning, Local Government and the Regions Committee Decent Homes Report, May 2004). standard. Some housing providers specify a target SAP value as a measure of efficiency. The CI should be expressed as a value (to one decimal place) between with the higher the number the better the performance. Both measures take into individual heating patterns and temperatures. (DEFRA, The Government s Standard Assessment Procedure for Energy Ratings in Dwellings, June 2001 Edition) the Government are unable to succumb to every individual tenant request. Decisions on prioritising spend and meeting tenant needs have been devolved to the social landlord level and they are then employing their own judgement to satisfy them. For the Standard Assessment Procedure (SAP) SAP is the Governments recommended system for home energy rating and it offers a benchmark method for measuring the energy efficiency of a dwelling. It is based on a calculated energy cost for space and water heating and in 2001, the Carbon Index (CI) was introduced into SAP. The CI is based on CO2 emissions associated with space account a range of factors that contribute to energy efficiency. These are: thermal insulation efficiency and control of the heating and domestic hot water ventilation solar gain fuel prices Summary In summary the Decent Homes Standard consists of four main criterion that combine to measure the standard of a property. Social landlords must understand each of the components in order to ensure that their housing stock meets a minimum requirement by This paper, in particular has focused on two of the components: Reasonably Modern Facilities and Services and a standard to be applicable on a national basis, the scope must be clear and consistent. The second criterion assesses the thermal comfort of the property. The majority of homes that fail the Decent Homes Standard fail on the basis of this criterion and as such, this is a key area that must be addressed. Thermal comfort is contingent on the efficiency of the heating, insulation and ventilation and water heating. Both the SAP rating Reasonable Degree of Thermal Comfort. systems installed in a property. 8 9

6 These are not mutually exclusive and require minimum standards to ensure a comfortable living temperature is maintained. Where new heating systems are installed, there must be: The ODPM have suggested that the thermal comfort criterion should play a key role in their proposed Decent Homes Plus standard that may set new, tougher standards for Owing to the condition of the existing stock, around 220,000 properties per annum will have to be brought up to the Decent Homes Standard from Some of the key repair, Applied Energy Products Ltd Based in the UK, Applied Energy Products Ltd has some of the best known brands and products available for heating, ventilation and showering If you require further information, please fill in the form below and fax back to Please help us keep our records up to date. If any of your details are incorrect, please amend them below and fax back. an element of controllability a minimum level of insulation an adequate provision of ventilation If this happens, the early indications suggest that the SAP rating system will be used as a guiding principle for energy efficiency. maintenance and improvement works include kitchen / bathroom upgrades, and the installation of new heating systems. This represents a significant commitment and workload for housing professionals. solutions: If you would like more information on the Decent Homes Standard or would like to gain CPD certification using our on-line learning modules, please visit Name Job Title Organisation With significant experience in Egan-driven best value and partnering solutions, Applied Energy Products Ltd can offer help and advice to housing professionals looking to achieve the Decent Homes Standard. To find out how we can help, contact: Address Postcode Telephone Information request: Fax Website Morley Way Woodston Peterborough PE2 9JJ Please contact me to discuss this issue of insight further Please send me a Creda product directory Please send me a Redring product directory Please send me an Xpelair product directory I am not interested in receiving further issues of insight. Please remove me from your mailing list. Tel: Fax: Please note: Every effort has been made to ensure the accuracy and currency of the information contained in this edition of insight. However, content is subject to change from time to time and Applied Energy Products Ltd can accept no liability for the accuracy of all the information presented